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Appeals did not err in ruling that it is entitled to such refund or 6. An administrative claim for refund of VAT input taxes in the
credit. amount of P28,369,226.38 with supporting documents (inclusive of
the P12,267,981.04 VAT input taxes subject of this Petition for
Review), was filed on 4 October 1999 with Revenue District Office
The Case No. 83, Talisay Cebu;
1
Before us is a Petition for Review under Rule 45 of2 the Rules of 7. No final action has been received by [respondent] from [petitioner]
Court, seeking to set aside the May 27, 2002 Decision of the Court on [respondent’s] claim for VAT refund.
of Appeals (CA) in CA-G.R. SP No. 66093. The decretal portion of
the Decision reads as follows: “The administrative claim for refund by the [respondent] on October 4,
1999 was not acted upon by the [petitioner] prompting the [respondent] to
“WHEREFORE, foregoing premises considered, the petition for review is elevate the case to [the CTA] on July 21, 2000 by way of Petition for Review
3
DENIED for lack of merit.” in order to toll the running of the two-year prescriptive period.
“For his part, [petitioner] x x x raised the following Special and
Affirmative Defenses, to wit:
The Facts 1. [Respondent’s] alleged claim for tax refund/credit is subject to
administrative routinary investigation/examination by [petitioner’s]
The CA quoted the facts narrated by the Court of Tax Appeals
Bureau;
(CTA), as follows:
2. Since ‘taxes are presumed to have been collected in accordance with
“As jointly stipulated by the parties, the pertinent facts x x x involved in laws and regulations,’ the [respondent] has the burden of proof that
this case are as follows: the taxes sought to be refunded were erroneously or illegally
collected x x x;
1. [Respondent] is a resident foreign corporation duly registered with
the Securities and Exchange Commission to do business in the 136
Philippines, with principal office address at the
_______________
4 CA Decision, pp. 2-4; Rollo, pp. 22-24. Citations omitted. The Court’s Ruling
Sole Issue:
VOL. 451, FEBRUARY 11, 2005 137 Entitlement of a VAT-Registered PEZA Enterprise to
Commissioner of Internal Revenue vs. Seagate Technology a Refund of or Credit for Input VAT
(Philippines) No doubt, as 7 a PEZA-registered enterprise within a special
economic8
zone, respondent is entitled to9 the fiscal incentives
10
and
This sum represented the unutilized but substantiated input VAT benefits provided for in either PD 66 or EO 226. It shall,
paid on capital goods purchased for the period covering April 1, moreover, enjoy all privileges, benefits,11 advantages
12
or exemptions
1998 to June 30, 1999. under both Republic Act Nos. (RA) 7227 and 7844.
The appellate court reasoned that respondent had availed itself
only of the fiscal incentives under Executive Order No. (EO) 226 _______________
(otherwise known as the Omnibus Investment Code of 1987), not of
those under both Presidential Decree No. (PD) 66, as amended, and 6 Petitioner’s Memorandum, p. 5; Rollo, p. 99. Original in upper case.
Section 24 of RA 7916. Respondent was, therefore, considered 7 Referred to as ecozone, it is a selected area with highly developed, or which has
exempt only from the payment of income tax when it opted for the the potential to be developed into, agroindustrial, industrial, tourist/recreational,
income tax holiday in lieu of the 5 percent preferential tax on gross commercial, banking, investment and financial centers. §4(a), Chapter I of RA 7916,
income earned. As a VAT-registered entity, though, it was still otherwise known as “The Special Economic Zone Act of 1995.”
subject to the payment of other national internal revenue taxes, like 8 §35, Chapter III of RA 7916.
the VAT. 9 PD 66 is the law creating the Export Processing Zone Authority or EPZA. See 1st
Moreover, the CA held that neither Section 109 of the Tax Code paragraph of §23, Chapter III of RA 7916.
nor Sections 4.106-1 and 4.103-1 of RR 7-95 were applicable. 10 EO 226, in Article 1 thereof, is also known as the “Omnibus Investments Code”
Having paid the input VAT on the capital goods it purchased, of 1987. See 1st paragraph of §23, Chapter III of RA 7916.
respondent correctly filed the administrative and judicial claims for 11 RA 7227, in §1 thereof, is also known as the “Bases Conversion and
its refund within the two-year prescriptive period. Such payments Development Act of 1992.” See §51, Chapter VI of RA 7916.
were—to the extent of the refundable value—duly supported by 12 RA 7844, in §1 thereof, is also known as the “Export Development Act of 1994.”
VAT invoices or official receipts, and were not yet offset against any See 2nd paragraph of §23, Chapter III of RA 7916.
output VAT liability. 5
139
Hence this Petition.
repacked, assembled, installed, sorted, cleaned, graded or otherwise The VAT on capital goods is an internal revenue tax from which
processed, manipulated, manufactured,
13
mixed or used directly or petitioner as an entity is exempt. Although
indirectly in such activities. Even so, respondent would enjoy a
net-operating loss carry over; accelerated depreciation; foreign _______________
exchange and financial assistance;
14
and exemption from export
taxes, local taxes and licenses. 18 (b) of the 2nd paragraph of §12 of RA 7227.
Comparatively, the same exemption 15
from internal revenue laws 19 §51, Chapter VI of RA 7916.
and regulations applies if EO 226 is chosen. Under this law, 20 §51, Chapter VI of RA 7916.
respondent shall further be entitled to an income tax holiday; 21 (c) of the 2nd paragraph of §12 of RA 7227.
additional deduction for labor expense; simplification of customs 22 (d) of the 2nd paragraph of §12 of RA 7227.
procedure; unrestricted use of consigned equipment; access to a 23 Referred to as the Central Bank under (e) of the 2nd paragraph of §12 of RA
bonded manufacturing warehouse system; privileges for foreign 7227.
nationals employed; tax credits on domestic capital equipment, as 24 §17 of RA 7844.
well as for taxes and duties on raw materials; and exemption from 25 §16 of RA 7844. See 2nd paragraph of §23, Chapter III of RA 7916.
contractors’ taxes, wharfage dues, taxes and duties on imported 26 PD 1853 was the law that took effect in 1983, requiring deposits of duties upon
capital equipment
16
and spare parts, export taxes, duties,17imposts the opening of letters of credit to cover imports.
and fees, local taxes and licenses, and real property taxes. 27 2nd paragraph of §4, Chapter I of RA 7916.
141
_______________
See §193(d) of the National Internal Revenue Code of 1977 as further amended by §1 of Pres. 144
Decree No. 1358 dated April 21, 1978, wherein the tax credit method, instead of the cost
deduction method, was mandated to be applied in computing the VAT due.
144 SUPREME COURT REPORTS ANNOTATED
36 Deoferio, Jr. and Mamalateo, supra, p. 34.
Commissioner of Internal Revenue vs. Seagate Technology
37 Id., pp. 34-35.
(Philippines)
38 “Output taxes” refer to the VAT due on the sale or lease of taxable goods,
properties or services by a VAT-registered or VAT-registrable person. See last
paragraph of §110(A)(3) and §236 of the Tax Code. Effectively
50
zero-rated transactions,
51
however, refer to the sale of
39 Presumed to be VAT-registered. goods or supply of services to persons or entities whose
40 By “input taxes” is meant the VAT due from or paid by a VAT-registered person exemption under special laws or international agreements to which
in the course of trade or business on the importation of goods or local purchases of the Philippines52
is a signatory effectively subjects such transactions
goods or services, including the lease or use of property from a VAT-registered to a zero rate. Again, as applied to the tax base, such rate does not
person. See penultimate paragraph of §110(A)(3) of the Tax Code. yield any tax chargeable against the purchaser. The seller who
41 §110(B) of the Tax Code. charges zero output tax on such transactions can also claim a
refund of or a tax credit certificate for the VAT previously charged
VAT-registered persons shall pay the VAT on a monthly basis. §114(A) of the Tax Code. by suppliers.
143 Zero Rating and
Exemption
VOL. 451, FEBRUARY 11, 2005 143
In terms of the VAT computation, zero rating and exemption are the
Commissioner of Internal Revenue vs. Seagate Technology same, but the extent of relief that results from either one of them is
(Philippines) not. 53
Applying the destination
54
principle to the exportation of goods,
42
shall be carried over to the succeeding quarter or quarters. Should automatic zero rating is primarily intended to be enjoyed by the
the input taxes result from zero-rated or effectively zero-rated seller who is directly and legally liable for the VAT, making such
43
transactions or from the acquisition of capital 44goods, any excess seller internationally competitive by allowing the refund
55
or credit of
over the45output taxes shall instead be refunded46 to the taxpayer or input taxes that are attributable to export sales. Effective zero
credited against other internal revenue taxes. rating, on the contrary, is intended to benefit the purchaser who,
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not being directly and legally liable for the payment of the VAT, will 59 Deoferio, Jr. and Mamalateo, supra, p. 118.
ultimately bear the burden of the tax shifted by the suppliers. 60 Id., p. 132.
In both instances of zero rating,56 there is total relief for the 61 Id., pp. 132-133.
purchaser from the burden of the tax. But in an exemption 62 De Leon, p. 132.
146
_______________
regard to the 60
tax status—VAT-exempt or not—of the party to the because the ecozone within which it is registered is 69 managed and
transaction. Indeed, such transaction is not subject to the VAT, operated by the PEZA as a separate customs territory. This means
but the seller is not allowed any tax refund of or credit for any input that in such zone is created the legal
taxes paid.
An exempt party, on the other hand, is a person or entity granted
_______________
VAT exemption under the Tax Code, a special law or an
international agreement to which the Philippines is a signatory, 63 §109(q) of the Tax Code.
and by virtue
61
of which its taxable transactions become exempt from 64 Deoferio, Jr. and Mamalateo, supra, p. 187.
the VAT. Such party is also not subject to the VAT, but may be 65 Id., p. 69.
allowed a tax refund of or credit for input taxes paid, depending on 66 §106(A)(2) of the Tax Code.
its registration as a VAT or non-VAT taxpayer. 67 §106(A)(1) of the Tax Code.
As mentioned earlier, the VAT is a tax on consumption, the 68 §106(A)(2)(c) of the Tax Code.
amount of which may be shifted or passed on 62
by the seller to the 69 1st paragraph of §8, Chapter I of RA 7916.
purchaser of the goods, properties or services. While the liability is
imposed on one person, the burden may be passed on to another. 147
Therefore, if a special law merely exempts a party as a seller from
its direct liability for payment of the VAT, but does not relieve the
VOL. 451, FEBRUARY 11, 2005 147
same party as a purchaser from
Commissioner of Internal Revenue vs. Seagate Technology
(Philippines)
_______________
70 71
57 Id., p. 121. fiction of foreign territory. Under the cross-border principle of the
58 De Leon, pp. 133 & 135. VAT system being enforced by the Bureau of Internal Revenue
72
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(BIR), no VAT shall be imposed to form part of the cost of goods the direct liability is imposed on one person but the indirect burden
destined for consumption outside of the territorial border of the is passed on to another. Respondent, as an exempt entity, can
taxing authority. If exports of goods and services 73
from the neither be directly charged for the VAT on its sales nor indirectly
Philippines to a foreign country are free of the VAT, then the same made to bear, as added cost to such sales, the equivalent VAT on its
rule holds for such exports from the national territory—except purchases. Ubi lex non
specifically declared areas—to an ecozone.
Sales made by a VAT-registered person in the customs territory _______________
to a PEZA-registered entity are considered exports to a foreign
country; conversely, sales by a PEZA-registered entity to a VAT- 75 This zone is akin to the former army bases or installations within the
registered person in 74the customs territory are deemed imports from Philippines. Saura Import and Export Co., Inc. v. Meer, 88 Phil. 199, 202, February
a foreign country. An ecozone—indubitably a geographical 26, 1951.
territory of the Philippines—is, 76 Deoferio, Jr. and Mamalateo, supra, p. 199.
77 An “export processing zone” is a specialized industrial estate located physically
_______________ and/or administratively outside customs territory, predominantly oriented to export
production, and may be contained in an ecozone. §4(a) and (d), Chapter I of RA 7916.
A “customs territory” means the national territory of the Philippines outside of the proclaimed 78 Article 23, Chapter I, Title I, Book I of EO 226. See §2.mm.2), Rule I, Part I of
boundaries of the ecozones, except those areas specifically declared by other laws and/or the “Rules and Regulations to Implement Republic Act No. 7916, otherwise known as
presidential proclamations to have the status of special economic zones and/or free ports. §2.g, ‘The Special Economic Zone Act of 1995.’ ”
Rule 1, Part I of the “Rules and Regulations to Implement Republic Act No. 7916, otherwise 79 Article 77(2), Book VI of EO 226.
known as ‘The Special Economic Zone Act of 1995.’ ” 80 §106(A)(2)(a)(5) of the Tax Code.
Tax Refund as
VOL. 451, FEBRUARY 11, 2005 151 Tax Exemption
Commissioner of Internal Revenue vs. Seagate Technology
To be sure, statutes that grant tax 103
exemptions are construed
(Philippines) 102
strictissimi juris against
104
the taxpayer and liberally in favor of
90 the taxing authority. 105
Fifth, export processing zone enterprises registered with the Tax refunds are in the nature of such exemptions. Accordingly,
Board of Investments (BOI) under EO 226 patently enjoy exemption the claimants of those refunds bear the burden of proving the
106
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factual basis of their claims; and of showing, by words too107plain to _______________
be mistaken, that the legislature intended to exempt them. In the
108 Deoferio, Jr. and Mamalateo, supra, p. 155.
present case, all the cited legal provisions are teeming with life with
109 Agpalo, supra, pp. 82-83.
respect to the grant of tax exemptions too vivid to pass unnoticed.
110 Deoferio, Jr. and Mamalateo, supra, p. 218.
In addition, respondent easily meets the challenge.
111 §3(3) of Revenue Memorandum Circular No. (RMC) 74-99.
Respondent, which as an entity is exempt, is different from its
112 §§1 and 2 of PD 66.
transactions which are not exempt. The end result, how-
154
_______________
transactions that are otherwise taxable is merely a necessary Wisely accorded to ecozones created under RA 7916 was the
incident to the tax exemption conferred by law upon it as an entity, government’s policy—spelled out118earlier in RA 7227—of converting
108
not upon the transactions themselves. Nonetheless, its exemption into alternative productive
119
uses the former military reservations
120
as an entity and the non-exemption of its transactions lead to the and their extensions, as well as of providing them incentives 121
to
same result for the following considerations: enhance the benefits that would be derived 122
from them in
First, the contemporaneous construction of our tax laws by BIR promoting economic and social development.
authorities
109
who are called upon to execute or administer such
laws will have to be adopted. Their prior tax issuances have held _______________
inconsistent positions brought about by their probable failure to
113 2nd paragraph of §2, Chapter I of RA 7916.
comprehend and fully appreciate the nature of the VAT as a tax on 110 114 Article 2.1, Chapter I of EO 226.
consumption and the application of the destination principle.
115 Article 2.3, Chapter I of EO 226.
Revenue Memorandum Circular No. (RMC) 74-99, however, now
116 Article 2.8, Chapter I of EO 226.
clearly and correctly provides that any VAT-registered supplier’s
117 §51, Chapter VI of RA 7916.
sale of goods, property or services from the customs territory to any
118 Tiu v. Court of Appeals, 361 Phil. 229, 242; 301 SCRA 278, 289, January 20,
registered enterprise operating in the ecozone—regardless of the
1999.
class or type
111
of the latter’s PEZA registration—is legally entitled to
119 1st paragraph of §2, RA 7227.
a zero rate.
120 §§12 and 15 of RA 7227.
Second, the policies of the law should prevail. Ratio legis est
121 John Hay Peoples Alternative Coalition v. Lim, 414 SCRA 356, 369, October 24,
anima. The reason for the law is its very soul.
2003.
In PD 66, the urgent creation of the EPZA which preceded the
122 2nd paragraph of §2, RA 7227.
PEZA, as well as the establishment of export processing zones,
seeks “to encourage and promote foreign commerce as a means of x 155
x x strengthening our export trade and foreign exchange position, of
hastening industrialization, of reducing domestic 112 unemployment,
and of accelerating the development of the country.” VOL. 451, FEBRUARY 11, 2005 155
Commissioner of Internal Revenue vs. Seagate Technology lower courts and the mode of appeal taken by petitioner before this
(Philippines) Court.
The PEZA law, which carried over the provisions of the EPZA
Finally, under RA 7844, the State declares 123 the need “to evolve law, is clear in exempting from internal revenue laws and
export development into a national effort” in order to win regulations the equipment—including capital goods—that
international markets. By providing many export and tax registered enterprises
132
will use, directly or indirectly, in
124
incentives, the State is able to drive home the point that manufacturing. EO 226 even reiterates 133
this privilege among the
exporting is indeed “the key to national survival and the means incentives it gives to such enterprises. Petitioner merely asserts
through which the economic goals of increased employment and that by virtue of the PEZA registration alone of respondent, the
125
enhanced incomes can most expeditiously be achieved.” latter is not subject to the VAT. Consequently, the capital goods and
The Tax Code itself seeks to “promote sustainable economic services respondent has purchased are not considered 134
used in the
growth x x x; x x x increase economic activity; and x x x create a VAT business, and no VAT refund or credit is due. This is a non
robust environment for business to enable firms to compete better sequitur. By the VAT’s very nature as a tax on consumption, the
126
in the regional as well as the global market.” After all, capital goods and services respondent has purchased are subject to
international competitiveness requires economic and tax incentives the VAT, although at zero rate. Registration does not determine
to lower the cost of goods produced for export. State actions that taxabil-ity under the VAT law.
affect global competition need to be 127 specific and selective in the
pricing of particular goods or services. _______________
All these statutory policies are congruent to the constitutional
128
mandates of providing incentives to needed investments, as well 130 Schwab, extract from the Preface of the Global Competitiveness Report 2003-
as of promoting the preferential use of domestic materials and 2004, www.weforum.org, last visited January 27, 2005, 9:05am PST.
locally produced goods and adopting measures to help make these 131 §236 of the Tax Code.
129
competitive. Tax credits for domestic inputs strengthen backward 132 §17(1) of PD 66 and §56, Chapter VI of RA 7916.
linkages. Rightly so, “the rule of law and the existence of credible 133 Article 77(1), Book VI of EO 226.
and efficient 134 Petitioner’s Memorandum, p. 9; Rollo, p. 103.
157
_______________
123 1st paragraph of §2, Article I of RA 7844. VOL. 451, FEBRUARY 11, 2005 157
124 §§4(c) of Article I, 16, and 17 of RA 7844.
Commissioner of Internal Revenue vs. Seagate Technology
125 2nd paragraph of §2, Article I of RA 7844.
(Philippines)
126 §2 of the Tax Code, as amended by RA 8761 effective January 1, 2000; and by
RA 9010, the effectivity of which has been retroacted to January 1, 2001.
127 American Society of International Law Proceedings, “Indigenous People and Moreover, the facts have already been determined by the lower
the Global Trade Regime,” 96 Asilproc 279, 281, March 16, 2002. courts. Having failed to present evidence to support its135contentions
128 §20 of Article II of the 1987 Constitution. against the income tax holiday privilege of respondent, petitioner
129 2nd paragraph of §1 and §12 of Article XII of the 1987 Constitution. is deemed to have conceded. It is a cardinal rule that “issues and
arguments not adequately and seriously136brought below cannot be
156 raised for 137the first time on appeal.” This
138
is a “matter of
procedure” and a “question of fairness.” Failure to assert
“within a reasonable time warrants a presumption that the party
156 SUPREME COURT REPORTS ANNOTATED 139
entitled to assert it either has abandoned or declined to assert it.”
Commissioner of Internal Revenue vs. Seagate Technology The BIR regulations additionally requiring an approved prior
140
(Philippines) application for effective zero rating cannot prevail over the clear
VAT nature of respondent’s transactions. The scope of such
public institutions are130 essential prerequisites for sustainable regulations is not
141
“within the statutory authority x x x granted by
economic development.” the legislature.
First, a mere administrative issuance, like a BIR regulation,
VAT Registration, Not Application cannot amend the law; the 142
former cannot purport to do any more
for Effective Zero Rating, than interpret the latter. The courts will not coun-
Indispensable to VAT Refund
131 _______________
Registration is an indispensable requirement under our VAT law.
Petitioner alleges that respondent did register for VAT purposes 135 CA Decision, p. 7; Rollo, p. 27; and CTA Decision, p. 5, Rollo, p. 35.
with the appropriate Revenue District Office. However, it is now too 136 Magnolia Dairy Products Corp. v. National Labor Relations Commission, 322
late in the day for petitioner to challenge the VAT-registered status Phil. 508, 517; 252 SCRA 483, 490, per Francisco, J.
of respondent, given the latter’s prior representation before the
provision merely exempts respondent from taxes imposed on incentives such as the exemption from local and national taxes, x x x tax
153
business. To repeat, the VAT is a tax imposed on consumption, not credits for locally sourced inputs x x x.”
on business. Although respondent as an entity is exempt, the
transactions it enters into are not necessarily so. The VAT And third, no question as to either the filing of such claims within
payments made in excess of the zero rate that is imposable may the prescriptive period or the validity of the VAT returns has been
certainly be refunded or credited. raised. Even if such a question were raised, the tax exemption
under all the special laws cited above is broad enough to cover even
154
Compliance with All Requisites the enforcement of internal revenue laws, including prescription.
for VAT Refund or Credit
_______________
As further enunciated by the Tax Court, respondent 150 complied with
all the requisites for claiming a VAT refund or credit. 152 This provision has been expressly repealed by the 2nd paragraph of §20 of RA
First, respondent is a VAT-registered entity. This fact alone 7716. See note 94.
distinguishes the present case from Contex, in which this Court 153 Legislative Archives, Committee Report No. 01027, House of Representatives,
held that151the petitioner therein was registered as a non-VAT December 14, 1994, pp. 00132 & 00141.
taxpayer. Hence, for being merely VAT-exempt, the petitioner in 154 Commissioner of Customs v. Philippine Phosphate Fertilizer Corp.; supra, pp.
that case cannot claim any VAT refund or credit. 9-10.
Second, the input taxes paid on the capital goods of respondent
162
are duly supported by VAT invoices and have not
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163
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